Study of Bapunagar Slum in Surat

STUDY OF BAPUNAGAR SLUM IN SURAT

Shashikant Kumar and Pinakin KhatriGreen Eminent, Vadodara

Preface

The report is outcome of the request made by representatives of NGOs and concerned citizens from Bapunagar, Subashnagar, Nehrunagar and Iqbalnagar. We were invited to undertake the quick assessment of the situation and suggest suitable measures as solution. After visiting the study area we came to know the manner in which the SMC has approached in addressing the housing issue, on pretext disaster mitigation. Community has hardly consulted through participation and representatives often misunderstood the situation. Still there is lack of information regarding the Why embankment was constructed at present place on the west bank near Nehru Bridge by Irrigation Department? Why people are being forced to move out of the areas? Whether in-situ development in present context was not suitable for SMC? What they have not proposed housing in the present site? More information on some of these questions is being asked from SMC under the RTI Act.

The report presents a brief account of the study area and initial observation of the urban planners, who are technically qualified to understand the situation. Our recommendation is based on our findings however, a detailed analysis is possible only after cooperation from the Surat Municipal Corporation.

We thank people of these areas in helping us in quick assessment and sharing their ideas of redevelopment. We expect all those stakeholders in the study area to help authorities and decision makers to take right decision.

Thank You

Shashikant Kumar, Principal ConsultantPinakin Khatri, Associate Consultant

Green Eminent, 304, Time Square, FatehgunjVadodara, 390002 Tel: 91-265-3015418

STUDY OF BAPUNAGAR SLUM IN SURAT

Introduction

Surat, has 400 slum pocket spread over various parts of the city, mostly situated along the water bodies, industrial areas and some public lands. The slums are populated by people belonging to Economically Weaker Section (EWS) and Low Income Groups (LIG). The Surat Municipal Corporation under its IHSDP scheme (2008-09) has been targeting these slums.

The Problem

(A) The slums on West bank of river Tapi, along Nehru Bridge and Makkai Bridge has been targeted for the relocation to new sites location on the outskirts of the city. The slum dwellers of Bapunagar (5000 Houses), Nehru Nagar, Subhash Nagar and Iqbal Nagar have being told to be prepared to be moved from the present sites. As per the people’s perception they have been proposed to be allocated alternate site at Kosad, 10 kms away from the present site, and recently incorporated in the municipal corporation limits. People at these slums are divided on moving to newer site. Till now, 9,688 houses for urban poor have been completed at Kosad and Bhestan. Another 9,320 and 9,500 houses will be ready for possession by the end of 2009 and May 2010. SMC is planning to complete the project for constructing 42,175 houses by the end of 2010. Plots kept reserved for EWS/SEWS housing purpose and land purchased at Bhestan and Kosad are being utilized for this purpose (Source: ToI:9 Dec 2009).

Corporation conducted survey, allotted numbers to houses, taken finger prints and photographs of individual property residents. Now they are asking for proof of residence to list them as beneficiaries of the project. Some people have already filled the forms for the allotment of property, but community leaders and NGO representative feel few are ready to shift to new site. To find out whether there can be alternate strategy for the in-situ development of Slums, the opinion of experts was sought by the community leaders.

(B) The Irrigation Department in association with SMC has constructed a linear embankment recently which has segregated the slums with developed society. People do not know why they have considered embankment at present location. They want an expert opinion on its correctness.

Our Approach

Since the scope of our analysis is limited given information, we decided to conduct a quick (a) Field Assessment of Slums and Physical observation of Features (b) Make observation report based on the discussion with community, available data, maps and information from the secondary report (c) Suggest conceptual alternative measures for solving the issues/problems, to support the community action in studied slums.

Figure 1 Surat Flood Aftermath - Iqbalnagar (Source: AIDM, Ahmadabad Report)

Surat Flood

The genesis of the present activities associated with the relocation of the slums from the present sites lies in the Surat flood in year 2006. The Slums along the west bank

of river Tapi was devastated mostly north of Nehru Bridge, including Iqbalnagar (located between embankment and river) and Subhash Nagar. As per the land record in SMC (as in website) they are sited on the river bed. Surat 2006 floods was water management crisis at the Ukai reservoir located in North of city. It is claimed by many experts that it was human error on mismanagement of water which caused water to swell up to 20 feet in many parts of city during 4-9th August 2006. It was never in history of city, river Tapi has flood city to this extent, the danger was enormous and life in slums was severely affected for next few months.

According to one of the technical report, ‘the level of water started rising in the river Tapi from 1st August 2006 and started spreading in the nearby area of city. By 5th to 9th August 2006, almost 90% area of the city was flooded and the depth of flood water observed in the different areas was varying according to the topography of the City’. Given these exceptional circumstances, the life of people along the Tapi bank was safe otherwise, and people expect it to continue without much change.

Figure 2 : Submergence during Flood, 2006

Flood Control:

With minimum available information we can have quick judgement of the flood control measures taken in the study areas. The Tapi River had segregated channel from present Iqbal Nagar to present Nehru Bridge where now present embankment is constructed. In fact the construction of embankment and blocking of channel further south of Nehru Bridge by housing societies have blocked the earlier flow (since 1970s). However, the study area was flooded in prior years in 1968, 1994 and 1998 flood with little damage. Since the earlier embankment on Tapi river was never strengthened leading to loss of connecting road and erosion of edges on the western bank. Heavy siltation during earlier floods might have

also reduced the carrying capacity of river resulting overflow at the study area (between Iqbal Nagar to Bapu Nagar). Since the river is likely to further erode the landmasses it’s urgent for the authorities to start strengthening the banks of river.

Figure 4 : Missing Embankment

There was old embankment further on the river bed which used to protect these settlements from the flood. These embankments were washed away and no corrective measure or

Table: Flood History at SuratFlood Event

Discharge (Lac-Cusec)

Water Level at Hope Bridge (Meters)

Period

1 1883 10.05 11.05 July2 1884 8.46 10.05 September3 1894 8.01 10.33 July4 1942 8.60 10.56 August5 1944 11.84 11.32 August6 1945 10.24 11.09 August7 1949 8.42 10.49 September8 1959 12.94 11.55 September9 1968 15.5 12.08 August10 1994 5.25 10.10 Aug.-Sep.11 1998 7.0 11.40 September12 2006 9.09 12.40 AugustSource: Agihotri Prasit and J.N. Patel, Construction of Digital Elevation Model and Contour Map for 2006 Flood at Surat (India), World Applied Sciences Journal 5 (3): 318-323, 2008, IDOSI Publications, 2008

Figure 3: Old Embankment Remnants (Nehru Bridge)

rebuilding of the embankments was done on the bank of river near Bapunagar and south of Makkai Bridge.

Section – I: Field Observation

The field visit to the study areas i.e Bapunagar Slum was conducted along with the community leaders to initiate a first hand account of the concerns raised for the study. The community majority of them Muslims and Vanzaras (About 60 families) and vagaries (A scheduled caste) and Khandesi’s were residing in the areas extending from Iqbal Nagar (Near Causway) to Subhash Nagar, and Nehru Nagar north of Nehru Bridge. Bapunagar is located between Nehru Bridge and Makkai Bridge.

Housing: The structures in the slums were pucca, semi pucca and thatched housing units. Floors were made from mud, kota stones, tiles in majority of housing units. The housing units were closely defined with little open space surrounding the units, the community open spaces, available

in Subashnagar and Bapunagar. Roads width in these areas varies from 1meter to 6 meter width in colonies.

Community:

Bapunagar, has majority Muslim population with Vanzara families has been living since last 40 years and incremental housing units are added to the vacant space by the new dwellers mainly on the periphery. The internal roads in the colony have been improved during the various slum improvement schemes in 1984-85 and 1994-95. The housing unit here has been provided in electricity, water connection, underground/open drains, paved Kota stone streets, street lights, community toilets, public distribution shops, health clinic, Balwadi etc. The community has also constructed five Masjids, of which four are pretty big and one school at the location was obtained after much effort going right up to Delhi for obtaining sanction. Most of the households in the Bapunagar are engaged

Figure 5: Streets in Bapunagar

in businesses related to household’s article, auto rickshaw driving, grocery, and small merchants.

Nehru Nagar, has Muslims, Khandesi and Vagri community (a scheduled caste), all in equal proportion, residing along the bank and above the old embankment. The community majority of them engaged in daily vending services in the city are also residing since late 1960s. The community has managed to attract slum improvement with access to good roads, Balwadi, community toilets and street lights under various projects of Surat Municipal Corporation. There are some private revenue plots between embankment and river.

Nehru Nagar also has a functional cinema hall on the major axis, along the Bapunagar-Subhash Nagar road market, two floor structures, and community spaces.

Subash Nagar, has mix population residing on the erstwhile Hope Bridge to Rander road (which now abandoned). The community earlier used to have

fishermen and sand loaders who used to make living out of fishing and sand mining from the Tapi river bed. The site earlier used to have functional boat club, (today abandoned) by some private party, fully functional Sand mining business (now not functional after Ukai dam construction). The people in these areas are now working in the old city and west zone as daily wagers, house maid, vendors and small business. Most of them appeared to be from economically weaker and Lower income group with semi pucca and pucca housing structure. Most of the area north of Subhash Nagar is shown as river bed in the municipal records. However, many housing units were relocated by the SMC in these areas.

Figure 6: Active Street Use in Nehru Nagar

Figure 7: Shital Cinema in Nehru Nagar

Figure 8: Idle Road in Subhash Nagar

Dwelling Units

As per the records available from the SMC website, following status is generated;

The estimated population

in the study area is about 45872 persons which constitutes approximately 9 percent of the Surat slum population of 5.8 Lakhs (2009). This is considerable given the official records. However, as per the estimate more than 10-12 thousand families might be residing in study area. About 20-30% of these settlements are on the edge of the river Tapi who might have suffered damage during the floods.

Location of housing units:

Table: Estimated Units and Households in Study AreaLocality Units Estimated Population

(HH *5.6)(as per SMC record 2007)

Households (Unit *1.5)

Bapunagar 2332 3498 19589Nehru Nagar 1295 1943 10878Subhash Nagar 1152 1728 9677Iqbal Nagar 263 395 2209JP Nagar 419 629 3520Total 5461 8192 45872

The location of the Bapunagar, Subhash Nagar, Nehru Nagar and Iqbal Nagar closer to the city centre and new developed areas of West and Central zone allows them to work and earn livelihood in the area with access to market, bus station and railway station. The interweaving of the social groups in the locality is strong and activities in the space are quite changing during the various hours of day.

As an important landmark the locality developed before west zone could possibly attract the housing societies and apartments. People residing in the colonies under the study are from economically weaker

section of society with strong bonding with the Surat’s socio-cultural life.

Figure 9: Existing Layout of Study Area

Life on the banks of River

Construction of Embankments

The Irrigation department has recently raised the height and dimension of embankment from 2-3 meters to 12 meters along the erstwhile water channel. The construction of embankments has cut off access of the Iqbal Nagar, J.P Nagar, Subhash Nagar and Nehru Nagar with rest of areas in west zone. This may also put the life of people living between embankment and river in grave danger.

The important issue in the earmarking of the land which was earlier classified as agricultural land in Town Planning Scheme Map (TP 11) has now being classified as river bed in SMC records (refer website). This might be the case where the newly constructed embankment lies 100 meters inside the

main Tapi river bank. The height of embankment is above 12 meters segregating the housing societies and other LIG/EWS settlements.

Life on the Edge of Embankment:

The removes access of the study area to west zone has resulted in acute access issue to the female members of community who are working as daily wage earners as well as house maid in the nearby housing societies and apartments. The embankment has also reduced access to the private plot owners on the river side their right to access and may pose serious disaster during future floods.

Figure 10 : Embankment: SMC could not observe - Land use

Figure 11: A Mammoth Structure: Saving what??

What is embankment going to achieve? This is the question posed to us by the people residing in the river side along with the expenditure involved in constructing half baked solution to saving the affluent society on city side. We were surprised to see the quality of construction and likely reasoning that might have taken place we have following points of assumption;

(a) People in the city side of embankment suffered severe loss of property during 2006 floods.

(b) Demand by the powerful and affluent to save them from eminent disaster in future and quick reaction by the Irrigation Department and Surat Municipal Corporation in constructing 20 feet high (5-10 feet above Nehru Bridge) wall. Even this action may not stop water to enter in the areas from the opening from and northern and southern part of embankment.

(c) To facilitate removal of so called slum (LIG/EWS housing) from the river bank, to accommodate ambitious river front project on the west bank of Tapi.

(d) To give opportunity to contractors in earning some extra money in name of flood protection and management.

(e) Lack of knowledge regarding Tapi bank topography, land use information and analysis of flood mitigation measures and plan.

(f) Poses serious soil erosion towards city side affecting apartments on the edge of embankment.

(g) Poorly constructed and unmindful of rights of people living in the locality.

Figure 12: Divided Society - Rich V/s Poor

Photo: Divided Lives and Activities along embankment in Surat

Our recommendations

(A) Embankment on the River: The existing embankment constructed (50 x 25 feet approx dimension) recently disregards the general topography and land use features along the river Tapi. We propose for a project to realign embankment along the main Tapi River course. This would save enormous land from getting eroded from subsequent floods. A technical feasibility for such exercise can be initiated by Irrigation Department and Municipal Corporation.

(B) Road: construct road on the present embankment alignments after reduction in height from 20 feet to 10 feet. Strengthened edges of embankment and protect citizen from either side from structural failures.

(C) River Front Project: As it has done in Ahmadabad’s Sabarmati River Front project, the slum redevelopment project has been initiated on the banks of river. Similarly SMC can initiate project to safeguard river against possible erosion due to future floods and reinstate the housing/residential areas.

(D) Environmental Impact Assessment: We would like to recommend for authorities to undertake Environmental Impact Assessment (EIA) along with Social Impact Assessment (SIA) of existing embankment, which is not in accordance with physiographic nature of terrain and river behavior.

Section - III

Recommendation

Housing Strategy for the Study Area

Following are the major points to be observed by SMC and Community:

(A) Stop outright clearance of present site by the municipal body without alternative rehabilitation plan.

(B) Community willingness and decision to shift or remain at present is primarily important for the relocation plan.

(C) Safeguard the interest of the people and residents of Bapunagar, Subhash Nagar, Nehru Nagar and Iqbal Nagar by constructing protective structures preventing further erosion of soil on the western river bank.

(D) Plan in-situ redevelopment of existing sites and take community participation in design, process and implementation of such plans.

(E) Assign proper amenities and infrastructure to the urban poor as per the guidelines laid down under the National Slum Policy.

(F) Community willingness to participate in the improvement of existing residential areas has been proved during the earlier schemes implemented in 1980s and 1990s.

(G) Identify and acquire nearby vacant lands (public) for the relocation for certain properties if required under the redevelopment plan (to be prepared in participation with community).

(H) If there is danger to life and property of residents than this should be clearly informed to the residents through community meetings and scientific evidences.

(I) The present flood management activities is not convincing to prove that this would safe guard the western bank of Tapi against the soil erosion, mud slide or water intrusion into the low lying areas.

(J) Instead of constructing structures along the rivers the SMC should make public evaluation report of flood management structure along river Tapi for its safety.

After careful study of the issues concerning people it is not advisable for the SMC to relocate the residents from present site (unless there is grave danger to their life and property) given the socio-economic linkages of the residents of Bapunagar, Nehru Nagar and Subhash Nagar. The close knit community structure and residential calls for the community participation in the decision for their shifting from the present site. If the consent for relocation to new site is not

given to SMC then there is scope for looking at the alternative including redevelopment of existing residential areas of low income groups and economically weaker section of people.

CONCEPTUAL REDEVELOPMENT PLAN

The study area can be proposed to have redevelopment plan which is explained as under

A redevelopment plan describes the purposes, goals, and objectives aimed at eliminating existing physical, social, and economic blight. The redevelopment plan must be in harmony with the existing Surat City Development Plan. A redevelopment plan generally contains the following components:

• A legal description of the project area in written and graphic form and a description of land uses;

• A description of the proposed actions to be taken to carry out redevelopment, covering the duties, powers, and authorities of the Redevelopment Agency as well as describing the rights of owners and tenants;

• A description of the authority and limitations for financing the activities necessary to implement the plan.

Recommendation

(A) Community Participation:

A continuing dialogue with the public is crucial to a successful redevelopment program. Without citizen input, ideas, and support, any redevelopment plan will falter. Citizens have a role to play in creating revitalized areas.

(B) Planning Agency (Community Based):

A community based planning agency which involves community leaders who actively involves in the process of communities requirements and facilities to corporation or other local bodies. Regular participation of community meetings in which they collect the information’s and know how from the residents of their particular area.

(C) Census/Assessment

Regular assessment of census information regarding population, migration and other socio-economic data for the redevelopment project. Collecting information about their ownership,

employment ratio, their working locations and other physical features for preparing redevelopment strategy. Collection of documentary address and identity proofs from community.

(D) Plan Preparation

The redevelopment plan for project area is presented at a public hearing and citizens are given an opportunity to review and comment on the plan. Meetings of the agency are open to the public. Public attendance and active participation by residents of the community are welcome. All decisions are made by elected representatives in full public view.

(E) Implementation

Identifications of existing infrastructure facilities and what should be done for the future generation of additional facilities that can be determined. Solid waste management plan for the entire community area and proper disposal system with engaging local bodies or community planning agency. Repair, restoration and reconstruction around existing facilities with proper management. Regular meetings have to be conducting with corporatores and community leaders.propper provisions of facilities to slum dwellers for loans and grants for redevelopment. Providing coordination system for residents and owners of the particular land that can be utilized for redevelopment purpose.Figure 13 : Conceptual Redevelopment Proposal

ANNEXURES